MINISTRY OF REFUGEE, IMMIGRATION AND INTEGRATION AFFAIRS Statistical Overview - Migration and Asylum 2007 Summer 2008
Statistical Overview Migration and Asylum 2007 Published by: The Ministry of Refugee, Immigration and Integration Affairs Holbergsgade 6 DK-1057 Copenhagen K Denmark Phone: (+45) 33 92 33 80 Fax: (+45) 33 11 12 39 E-mail: inm@inm.dk The Danish Immigration Service Ryesgade 53 DK-2100 Copenhagen Ø Denmark Phone: (+45) 35 36 66 00 Fax: (+45) 35 36 19 16 E-mail: us@us.dk Responsible editor: Director General Mr. Henrik Grunnet, the Danish Immigration Service Manuscript completed: Summer 2008 ISBN: 1903-038X Issue: 800 This publication is available on the common website of the Ministry of Refugee, Immigration and Integration Affairs and The Danish Immigration Service www.newtodenmark.dk.
Table of content Statistical Overview 2007 Table of content... 1 Summary and overview... 2-4 The organisation diagram The Danish Ministry of Refugee, Immigration and Integration Affairs... 5 The organisation diagram The Danish Immigration Service... 6 Explanatory notes...7-10 Work and study... 11 Overview of the statistical reporting in relation to work and study... 12 Positive decisions on work and study etc.... 13-14 Work permits to persons from the new EU Member States... 15-16 The Job Card Scheme... 17 Residence permits granted for educational purposes... 18 Interns and au pair... 19-20 EU/EEA... 21 Decisions on EU/EEA residence certificates... 22-24 Family reunification, etc.... 25 Overview of the statistical reporting in relation to family reunification, etc.... 26 Applications for family reunification... 27 Decisions on family reunification... 28 Asylum, etc.... 29 Asylum applications (incl. Dublin figures)... 30-31 Positive decisions on asylum... 32 Unaccompanied minor asylum-seekers... 33 Overview of the expenses of the accommodation of asylum-seekers... 34 Visa... 35 Visa applications and decisions... 36-37 Danish citizenship... 39 Danish citizenship... 40 Annexes... 41-56 Detailed tables by nationality and years on immigration and asylum, as well as tables on migration, stocks of immigrants and their descendants, and non-nationals in Denmark. Extract of the Danish Aliens Act (section 7 9)...Innercover Fact sheets (mid-pages) I. Re-orientation of the Danish Immigration Service II. Rules on asylum and immigration in Denmark III. International recruitment IV. Danish compliance with the EU Regulation on Community statistics on migration and international protection 1 1
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1 # # :(( 2 8 A &/&& : 2002 2003 2004 2005 2006 2007 & 2 " 0". Europe 48% Europe 64% Outside of Europe 52% Outside of Europe 36% & 2 111 ## United Kingdom 5% Others 35% Others 44% : China 17% Lithuania 7% Ukraine 9% Germany 12% Poland 32% Nepal 5% Philippines 10% USA 12% India 12% 4
The Danish Ministry of Refugee, Immigration and Integration Affairs (Organisation as of June 2008) Minister Ms Birthe Rønn Hornbech Permanent Secretary Mr Claes Nilas The Minister s Office and Press Secretary The Immigration Department The Integration Department The Administration Department The egovernment Department Head of Dept. Mr Kim Lunding Head of Dept. Mr Henrik Kyvsgaard Head of Dept. Mr Henrik Ankerstjerne Head of Dept. Ms Jannie Hilsbo Work and Family Reunification Division Immigration Law Division Division for Visa, Repatriation and Humanitarian Cases The Nationality Division The Secretariat of the Refugee Board Division of Employment and Training Division of Urban Affairs The Finance and Analysis Division Integration Policy Division Division for Cohesion and Prevention of Radicalization The International Division Group centre of Salary, Administration and Accounts The Secretary Division The Communications Unit The Control and Analysis Unit The Service Centre The IT Development Unit The IT Management Unit The Section for Danish Courses 5
The Danish Immigration Service (Organisation as of March 2008) Director General Mr Henrik Grunnet LEAN-Manager Mr Hjarn Zernichow Borberg Deputy Director General Mr Poul Mose Hansen Secretariat of Communications and the Director General Personnel and Service Division Financial and Consortium Statistical Division Provision Division* Documentation and Project Division Director of the Asylum and Family Reunification Center Ms Anni Fode Director of the Work and Visit Center Ms Inge Bruhn Thomsen Children and Residence Division Job Card Scheme Division Spouse Division Work Permit Division Asylum Division Study and Research Division Passport and Extension Division Au Pair and Intern Division Visa Division Customer Service * Responsible for asylum seekers welfare and other personal conditions during their accommodation 6
Explanatory notes The following gives a technical introduction to the figures in this Statistical Overview and in general to the policy with regard to compiling and publishing statistics on migration and asylum. Moreover, the aim is to give an introduction to immigration statistics in Denmark and to illustrate the relation between the inflow to Denmark indicated by figures on residence permits and immigration statistics, respectively. References to the EU Framework Regulation of the Community statistics on migration and asylum are also provided (Regulation 862/2007). Finally, some relevant Danish internet links are indicated. 1. Introduction to the figures in this overview Introduction: Nordic citizens can freely travel and reside in Denmark, including working in Denmark without holding a residence permit. All other foreigners must obtain a permit/certificate to stay in Denmark. Children of foreigners holding a residence permit in Denmark are granted an independent residence permit. Sources: The processing, compilation and publishing of statistics on immigration and asylum is solely based on administrative records most notably from the Danish Aliens Register (excl. visa-cases, EU-cases, the accommodation system for asylum-seekers and cases regarding acquisition of citizenship, cf. below). Applicants in the records are attributed and identified via a unique record number. The Danish Aliens Register serves as a common working register for all authorities dealing with the processing of residence permits and certificates in Denmark (i.e. the Ministry of Integration Affairs, the Refugee Board, the Danish Immigration Service, the Commissioner of the Police and the Regional State Administrations). Thus, the register contains information on foreign nationals whose cases are pending or have been examined i.e. under the provisions of the Danish Aliens Act. The register became operational in 1994. Compiling data from the Aliens Register is cumbersome and possibilities sometimes limited either for technical reasons or because it involves considerable resources to perform the task (e.g. the Aliens Register is not an actual statistical system). The Aliens Register includes in addition to its own record number also information about the possible civil registration number (see CPR below) e.g. after an alien is registered at the municipality of residence. Statistics on visa cases are derived from the Visa System, which is a separate database that is not linked to the Aliens Register. It became operational in 1998. As of the beginning of 2008, a new common electronic visa system (IVR-VIS/UM-VIS) has been implemented. The new Visa System is a common working system for all authorities dealing with visa cases (i.e. the Ministry of Foreign Affairs (Danish Embassies abroad), the Danish Immigration Service and the Ministry of Integration affairs). Later, the Commissioner of the Police will also take on the system. For citizens from the new Member States (except Cyprus and Malta) a special transitional plan regulating their access to the Danish labour market is applied as from 1 May 2004 (and gradually lifted as from 1 May 2008). Applications and decisions on these cases are registered and updated by the Danish Immigration Service in a separate EU System. Statistics on work permits to citizens from the new Member States are derived from the EU System. Statistics on the accommodation of asylum-seekers are mainly derived from an electronic accommodation system used both by the alien authorities and the operators in charge of the running of the asylum-centres. 7
Cases regarding the acquisition of Danish citizenships are processed in the Checklist System. The Ministry of Integration Affairs is working on digitizing the entire field of the Ministry, and in the upcoming years the Aliens Register will be replaced by an electronic case and document handling system (ECDH). See Fact sheet 3 in the Statistical Overview 2006 for an introduction. The system is part of the strategy to provide management information and statistics of a high quality internally and externally when demands arise. Availability: In general, the Danish Immigration Service only publishes aggregated statistics (i.e. the sum of individual records) counted in persons and not in cases. Statistics are typically flow data. Stock data, e.g. information on the number of valid permits at a given time cannot directly be retrieved from the Aliens Register. Typically, the statistics are broken down by periodicity and citizenship. Information about e.g. age and sex is available but not in general published. Statistics are compiled primarily on a monthly/quarterly basis and are usually available with a delay of one month. During a given calendar year data is provisional. Final data for a given year is typically published in March/April of the following year. In order to help the reader to interpret and use the tables and figures in this overview, a definition of the statistics is provided under each subject in question. Moreover, selected footnotes and references to legal definitions, etc., are provided to describe and delimit how the statistics are compiled. First time permits versus extensions and other decisions: The statistics refer to decisions on first time applications. Residence permits granted on the basis of first time applications do not entitle the person to stay permanently in Denmark. The first time permit is given for a maximum duration at a time, and the permit can only in certain circumstances be granted for an additional period. Many persons are therefore granted several residence permits (first time permits, extensions and finally a permanent residence permit) during their stay in Denmark. Furthermore residence permits are in certain cases withdrawn, revoked or not extended. This information is also contained in the Aliens Register but not published in this publication. Consequently, the statistics in this publication about first time permits do not, for many reasons, provide an overall picture of the number of decisions granted in the field of immigration and asylum. Finally, it should be noted that cohort statistics can be compiled technically however in recent years updates of cohort statistics have only been performed on an ad-hoc basis and only in the asylum area. Previously, cohort statistics were published regularly in the area of asylum. See e.g. Statistical Overview 2004. Quality: Despite the care which is taken in registering, updating and compiling the statistics, all figures in this overview and in general are subject to the inaccuracies inherent in a large register involving the use of many case-workers and authorities with access to the same recording system. However, the quality of the data from the Aliens Register, etc., is generally high and reliable. As a main rule, the compilation of statistics is based on figures directly retrieved from e.g. the Aliens Register no cell rounding of the data is applied. 2. Introduction to (im)migration statistics in Denmark Introduction: Immigration statistics include Danish nationals who register return from abroad, Nordic citizens who achieve 8
permanent address in Denmark and non-nordic citizens who are granted a residence (or a work) permit for more than three months. Source: The source of the (im)migration statistics in Denmark is primarily the Danish Civil Registration System (CPR). CPR is a nationwide civil register containing basic personal data about anyone who has a civil registration number. The centralised civil register in Denmark became operational in 1968. CPR is administered by the Ministry of Social Welfare together with the municipalities. Availability and periodicity: The compilation of migration statistics in Denmark is performed by Statistics Denmark. Some of the key figures available on a current basis include statistics on immigration and emigration, statistics on non-nationals, statistics on immigrants and their descendants and statistics on acquisitions of citizenship. As to meet the UN recommendations on migration statistics, Statistics Denmark also compiles long-term migration statistics (e.g. immigration with a stay of at least 12 months). However, the distinction between short time and long time migration in the registration of migrants, cf. again the recommendations, are not applicable in Denmark since this information is not registered. Quality: The quality of the migration statistics is generally high and reliable. However, the validity of the emigration statistics are to a certain extent blurred by the fact that the incentive to deregister is not always present. The periodicity of the migration statistics is typically quarterly or yearly. Statistics are published within 2 months after the end of the quarter/year. 3. Relation between residence permits and immigration statistics Statistics on residence permits in this overview do not directly reflect the actual level of immigration to Denmark. This is primarily due to the fact that: 1) Over time an individual can be stated several places in the statistics (double counting). Double counting can arise between different cases e.g. some persons, who apply for asylum in Denmark, have already been granted a family reunification permit. Moreover, double counting can also appear within a certain case area. This could for instance be persons, who were granted a residence permit to follow a higher education programme, and in addition were also granted a special work permit which allows them to work part-time. It could also be persons with a work or study permit who change jobs or education programmes, and thereby needs to be granted a new first time residence permit. 2) In some cases a residence permit is not used (e.g. the person never enters Denmark). 3) The figures include permits granted to work and study on the Faroe Islands and Greenland. These permits are territorially limited and therefore do not allow the person to stay in Denmark. 4) In some cases there can be a time gap between the time of the permit being granted and the time of entry into Denmark. 5) Nordic citizens can enter and stay in Denmark without a residence permit. Despite these qualifications, residence permit statistics give an approximate indication of the type and level of immigration to Denmark. Immigration statistics are the only true indicator of immigration to Denmark (immigration 9
statistics are available in the annexes of the publication). Technically, the statistics on residence permits (from mainly the Aliens Register) and immigration statistics (from CPR) can be linked together. Therefore, the Ministry of Integration Affairs, Statistics Denmark and the Danish Immigration Service are currently working on methodes of breaking down the immigration statistics by type of residence permit (excl. Nordic citizens). Some provisional statistics have already been published by Statistics Denmark (see Immigrated persons by reasons for residence 2005, July 2006, text only available in Danish). 4. Implementation of the EU Regulation 862/2007 The EU Regulation on Community statistics on migration and international protection was adopted in 2007. The Regulation establishes the legal basis for the data collection for third country nationals on immigration to and emigration from the Member State territories, non-nationals in Member States and administrative and judicial procedures in Member States on the granting of permission to reside, citizenship and asylum and the prevention of illegal migration. The first reference year of the data collection is 2008. The data collection involves a significant number of collection tables with statistical information with a level of breakdown by tables and additional disaggregations (e.g. age and sex) beyond the level of details to be published in this Statistical Overview. With regard to the statistical reporting on migration and asylum, the Danish Immigration Service therefore plans to make available the relevant collection tables on the website www.newtodenmark.dk when available in the future. See fact sheet IV in this publication for details regarding the current Danish compliance with the EU Regulation on Community statistics on migration and international protection. It should be noted that some technical issues with regard to the data collection are to be clarified with Eurostat. These issues include gaps in validity, a definition of all subcategories, a clear distinguishing between first time permit, renewal and change of immigration status. Moreover, data transmission formats and procedures also need to be clarified. 5. Internet links Key Danish figures on immigration and asylum are available at www.newtodenmark.dk, the common website of the Danish Ministry of Refugee, Immigration and Integration Affairs and The Danish Immigration Service. The website is available in both Danish and English and is updated on a monthly basis to provide the reader with a timely and consolidated picture of the migratory trends in Denmark. The website also contains overall figures on foreigners in Denmark and the integration of foreigners into Danish Society. - The Regional State Administration (www.statsforvaltning.dk): Information concerning the access to Denmark for EU/EEA citizens and workers from the new EU Member States. - The Danish National Labour Market Authority (www.ams.dk) and (www.workimport.dk): Information and statistics concerning the access to the Danish labour market for workers from the new EU Member States and information on Danish working conditions and job opportunities in Denmark. - The Ministry of Foreign Affairs (www.um.dk): Information on requisition of visas at the Danish Embassies abroad. - The Ministry of Science Technology and Innovation (www.workindenmark.dk): Information on moving to and working and living in Denmark for foreign knowledge workers. - Statistics Denmark (www.dst.dk): Immigration and emigration statistics, statistics on non-nationals and statistics on acquisitions of citizenship in Denmark. 10
WORK AND STUDY 11
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VISA 35
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Danish Citizenship 39
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Extract of the Danish Aliens Act (section 7-9) the complete text is available via www.newtodenmark.dk Section 7. (1) Upon application, a residence permit will be issued to an alien if the alien falls within the provisions of the Convention relating to the Status of Refugees (28 July 1951). (2) Upon application, a residence permit will be issued to an alien if the alien risks the death penalty or being subjected to torture or inhuman or degrading treatment or punishment in case of return to his country of origin. An application as referred to in the first sentence hereof is also considered an application for a residence permit under subsection (1). Section 8. (1) Upon application, a residence permit will be issued to an alien who arrives in Denmark under an agreement made with the United Nations High Commissioner for Refugees or similar international agreement, and who falls within the provisions of the Convention relating to the Status of Refugees (28 July 1951), cf. section 7(1). (2) In addition to the cases mentioned in subsection (1), a residence permit will be issued, upon application, to an alien who arrives in Denmark under an agreement as mentioned in subsection (1), and who risks the death penalty or being subjected to torture or inhuman or degrading treatment or punishment in the case of return to his country of origin, cf. section 7(2). (3) In addition to the cases mentioned in subsections (1) and (2), a residence permit will be issued, upon application, to an alien who arrives in Denmark under an agreement as mentioned in subsection (1), and who would presumably have satisfied the fundamental conditions for obtaining a residence permit under one of the provisions of the Aliens Act if he had entered Denmark as an asylum-seeker. Section 9. (1) Upon application, a residence permit may be issued to: (i) an alien over the age of 24 who cohabits at a shared residence, either in marriage or in regular cohabitation of prolonged duration, with a person permanently resident in Denmark over the age of 24 who: (a) is a Danish national; (b) is a national of one of the other Nordic countries; (c) is issued with a residence permit under section 7 or 8; or (d) has held a permanent residence permit for Denmark for more than the last 3 years. (ii) an unmarried child under the age of 15 of a person permanently resident in Denmark or of that person s spouse, provided the child lives with the person having custody of it and has not started its own family through regular cohabitation, and provided the person permanently resident in Denmark: (a) is a Danish national; (b) is a national of one of the other Nordic countries; (c) is issued with a residence permit under section 7 or 8; or (d) is issued with a permanent residence permit or a residence permit for the purpose of permanent residence, (iii) an under-age alien for the purpose of residence with a person permanently resident in Denmark other than the person having custody of it, provided the residence permit is issued for the purpose of adoption, residence as a result of a foster relationship or, if particular reasons make it appropriate, residence with the childs closest family, and provided the person permanently resident in Denmark: (a) is a Danish national; (b) is a national of one of the other Nordic countries; (c) is issued with a residence permit under section 7 or 8; or (d) is issued with a permanent residence permit or a residence permit for the purpose of permanent residence. Section 9 a. (1) Upon application, a residence permit may be issued to an alien if essential employment or business considerations make it appropriate to grant the application, including if the alien has concluded a contract of or has been offered employment either within a professional field short of particularly qualified labour or where the employment implies an annual remuneration of at least DKK 450,000.00.... The first sentence hereof only applies to workers who are nationals of Estonia, Latvia, Lithuania, Poland, Slovakia, Slovenia, the Czech Republic and Hungary if they cannot be issued with a residence permit pursuant to subsection (5). (2) Upon application, a residence permit may be issued to an alien if extension of his residence permit under sections 7 to 9 or sections 9b to 9e is refused under section 11(2), cf. section 19(1), or his residence permit is revoked under section 19(1), provided the alien has regular employment of prolonged duration or has been self-employed for a prolonged period, and employment or business considerations make it appropriate. (5) Upon application, a residence permit may be issued to an alien who is a national of Estonia, Latvia, Lithuania, Poland, Slovakia, Slovenia, the Czech Republic or Hungary if: (i) the alien has concluded a contract of or has been offered ordinary employment for at least 30 hours a week with an employer in Denmark pursuant to a Danish collective agreement applicable to the employer and covering the work in question, and where the party to the collective agreement representing the employees is at least a local trade union which is a member of a national employee association; (ii) the alien, in a field of work where conditions of pay and employment are usually only governed by an individual employment contract, has concluded a contract of or has been offered ordinary employment for at least 30 hours a week with an employer in Denmark as a researcher, teacher, salaried executive or as a specialist, etc.; or (iii) the alien, in cases other than those mentioned in paragraphs (i) and (ii), has concluded a contract of or has been offered ordinary employment for at least 30 hours a week with an employer in Denmark on usual conditions of pay and employment. (13) Upon notification to the Danish Immigration Service, an alien who is a national of Estonia, Latvia, Lithuania, Poland, Slovakia, Slovenia, the Czech Republic or Hungary and who has concluded a contract of or been offered employment under conditions as mentioned in subsection (5)(i) or (ii) with an employer approved under subsection (11) or (12) obtains a right to reside and work for the period until the Danish Immigration Service has decided whether the alien can be issued with a residence permit... (19) Subsections 5 to 18 apply correspondingly to nationals of Bulgaria and Romania. (20) On the basis of a point system laid down by the Minister of Refugee, Immigration and Integration Affairs, a residence permit may be issued upon application to an alien for up to six months for the purpose of seeking work. A residence permit issued under the first sentence hereof cannot be extended. Section 9 b. (1) Upon application, a residence permit can be issued to an alien who, in cases not falling within section 7(1) and (2), is in such a position that essential considerations of a humanitarian nature conclusively make it appropriate to grant the application. Section 9 c. (1) Upon application, a residence permit may be issued to an alien if exceptional reasons make it appropriate, including regard for family unity.. (2) Upon application, a residence permit may be issued to an alien whose application for a residence permit under section 7 has been refused, provided: (i) that it has not been possible to return the alien, cf. section 30, for at least 18 months; (ii) that the alien has assisted in the return efforts for 18 months consecutively; and (iii) that return must be considered futile according to the information available at the time. (3) A residence permit may be issued to: (i) an unaccompanied alien who has submitted an application for a residence permit pursuant to section 7 prior to his 18 th birthday if, from information available on the alien s personal circumstances, there are particular reasons to assume that the alien should not undergo asylum proceedings; (ii) an unaccompanied alien who has submitted an application for a residence permit pursuant to section 7 prior to his 18 th birthday, if there is reason to assume that in cases other than those mentioned in section 7 (1) and (2) the alien will in fact be placed in an emergency situation upon a return to his country of origin. Section 9 f. (1) Upon application, a residence permit may be issued to: (i) an alien who is to act as a religious preacher in Denmark; (ii) an alien who is to act as a missionary in Denmark; or (iii) an alien who is to act within a religious order in Denmark.
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